Team Sensemaking in Crisis Incubation Period: A Case of a Superspreader Event in Estonia

At the onset of COVID-19, regulating mass gatherings that were potential superspreader events was a key challenge for public administration. Before the national COVID-19 restrictions, decisions about mass events were debated at the local level, with team sensemaking a crucial tool in the decision-making process. This study uses data-frame theory to examine team sensemaking activities during the incubation period before a decision to allow a superspreader event in early March 2020 in Saaremaa, Estonia. By mapping the team sensemaking network, analyzing 17 media articles and conducting five stakeholder interviews, this article explores the team sensemaking activities behind the erroneous decision to allow the mass event. The results suggest that during the incubation period, errors in team-level sensemaking may stem not only from dysfunctional dynamics but also from a limited scope of team sensemaking activities. Team sensemaking during the incubation period seems limited to mapping data and elaborating on existing frames, reinforcing prevailing interpretations rather than reassessing them. Individuals engage in a broader range of sensemaking activities, such as questioning the frame or re-framing, but these insights do not translate to the team level. This study uncovers the complex dynamics of the incubation period team sensemaking and its crucial role in the early phases of crisis.